|
CITY OF VANCOUVER ADMINISTRATIVE REPORT |
Date: |
June 22, 2004 | |
Author: |
Jacquie Forbes-Roberts | |
Phone No.: |
604 873-7205 | |
RTS No.: |
4169 | |
CC File No.: |
3703 | |
Meeting Date: |
July 6,2004 |
TO: |
Vancouver City Council |
FROM: |
General Manager of Community Services Group |
SUBJECT: |
Co-ordinated Neighbourhood Response Program |
RECOMMENDATIONS
A. THAT Council endorse the Co-ordinated Neighbourhood Response Program as generally outlined in this report, beginning with a pilot program in the West End.
B. THAT Council approve $200,000.00 in funding for the Co-ordinated Neighbourhood Response Program over a two-year period. For 2004, $60,000.00 is to be allocated from the Contingency Reserve and the balance, ($140,000.00) be added to the CSG 2005 Operating Budget without offset.
C. THAT Council approve the creation of a temporary Project Co-ordinator position, (Planner II) at approximately $81,000.00 per year, subject to classification by the General Manager of Human Resources, and $3,600.00 for one-time technology costs, to be funded from the Neighbourhood Response Program funding.
D. THAT staff report back in six months from the initiation of the Program on a work plan and within one year on the selection of further neighbourhoods.
CITY MANAGER'S COMMENTS
The City Manager recommends approval and notes that this project builds on current local community initiatives, links well with the Vancouver Police Department's City-wide enforcement strategic plan, the Four Pillar approach and the goals and objectives of the City and the Vancouver Agreement (VA) to deal with street level issues, foster community capacity.
PURPOSE AND SUMMARY
This report seeks Council's endorsement of a Co-ordinated Neighbourhood Response Pilot Program. This initiative follows up on Council's endorsement of the recommendations from the Mayor's Forums on Neighbourhood Safety and Liveability. The purpose of this program is to respond to street level issues of aggressive panhandling, auto theft, homelessness, etc. in individual neighbourhoods through a co-ordinated effort of community groups and government resources. The project will include a Project Co-ordinator to provide co-ordination to local groups working on these issues, linkages to appropriate City services and liaison with Provincial and Federal ministries and Vancouver Coastal Health. This co-ordinated effort will be undertaken under the umbrella of the Vancouver Agreement, which already has related linkages and programs established, and is co-managed by the City with Provincial and Federal representatives.
BACKGROUND
On October 7, 2003, Vancouver City Council approved a resolution to convene a Mayor's Forum on Neighbourhood Liveability and Safety. The resolution, attached as Appendix A, noted the increasing concern in the City's neighbourhoods about disruptive street level activities such as aggressive panhandling and open drug trade, as well as concern for the safety and well-being of the homeless, addicts and sex-trade workers. The motion directed City Council to convene a Mayor's Forum to receive input from citizens, neighbourhood groups and businesses on the impacts of disruptive street behaviours, as well as suggestions for response.
In preparation for the Forums, the Mayor held meetings with six stakeholder groups, including: Business and Tourism; Community Organization Representatives; Legal and Civil Liberty Specialists; Service Providers; United We Can; and Youth and Workers from Dusk to Dawn.
Information issues and concerns raised during these meetings were compiled into a Background Information Document for the participants in two Neighbourhood Safety and Liveability Forums held in February, 2004. Draft recommendations based on the initial stakeholder group consultations (attached as Appendix B), were presented for discussion at the Forums. These recommendations covered three areas of concern:
1. Potential City actions, including: a co-ordinated local level approach to street disorder issues; and raising the level of Vancouver Police Department officers to the national average.
2. Several recommendations for Provincial actions, including: changes to Income Assistance and the eligibility limit; an increase in resources for mental health and youth drug and alcohol treatment; co-ordination of enforcement to tackle the proliferation of crystal meth; funding for affordable housing; and the return of traffic fine funds to municipalities.
3. Recommendations for Federal actions included: control of the precursors for the production of crystal meth; increased funding for supported housing for addicted and aboriginal youth; support for the Four Pillar drug strategy; and encouragement for the Prime Minster to follow through on commitment to implement revenue sharing with Municipalities.
On January 29, 2004, Council referred the recommendations to the Public Budget Forums and requested a report back. There was clear direction from the Forum participants that all levels of government and the community must work together to address the `on the ground issues' in neighbourhoods. It was also recognized that issues, and their resolution, may differ from neighbourhood to neighbourhood. Following the Forums, Council, on March 9, 2004, received a report on the Forums' outcome for information.
This report deals specifically with the Council recommendation that the City develop a co-ordinated response to street level liveability and safety issues in affected neighbourhoods.
The City currently has Neighbourhood Integrated Service Teams (NISTs). The focus is to provide an integrated City response to issues specifically within the City's jurisdiction. In the case of the Downtown Eastside, an expanded co-ordinated enforcement approach has been developed. It includes liaison with relevant Provincial and Federal ministries through the Vancouver Agreement. These connections have proven to be necessary and valuable in addressing some of the root social causes behind the street level liveability and safety issues. The proposed Co-ordinated Neighbourhood Response Program builds on this experience.
DISCUSSION
1. A Co-ordinated Neighbourhood Response to Liveability and Safety
The recommended Co-ordinated Neighbourhood Response to street level liveability and safety issues, is a two year pilot (2) for two communities. The thrust of this project is to assist and increase the capacity of local community groups already dealing with these issues. Key components of the proposed approach are to co-ordinate and facilitate local groups, organizations and agencies to problem-solve and partner, where appropriate, to address the specific problems in their area. In addition, City services will be tapped where necessary and, through the Vancouver Agreement, links to ministries in higher levels of government will be provided where appropriate.
The pilot will include a report back to Council within six months of project initialization with an action plan for the first neighbourhood and a report back within one year on the results to date, as well as on the selection of a second pilot neighbourhood. It is recommended that we proceed initially with one neighbourhood to develop a working approach, keeping in mind that this program, if successful, will eventually serve several neighbourhoods. There will be a full report out on the program at the end of the two year period to evaluate its success and applicability to other neighbourhoods.
2. Pilot Neighbourhoods
Given the relatively short time frame for reporting back, staff recommend that we start with one community, and then proceed to another community, once the first community is up and running. Work in a second community would begin within one year of project initialization. Staff support the proposal that this pilot begin in the West End. This neighbourhood has been experiencing an increase in disruptive street level activity such as aggressive panhandling, homelessness, drug dealing, etc. This increase may be due in part to Provincial service cuts, as well as some displacement as a result of the co-ordinated enforcement in the DTES.
An initial meeting has been held with key groups in the West End and a Draft Terms of Reference (attached as Appendix C) has been developed with their input. The first formal meeting will be convened if Council decides to proceed with the program.
Other neighbourhoods such as Grandview-Woodlands and Collingwood are also experiencing similar difficulties, and would be likely candidates for the next phase.
3. The Pilot Project
The mandate of the pilot project and the components of the proposed organizational structure are outlined below:
i) Mandate of the Co-ordinated Approach: To facilitate a partnership between community and government that co-ordinates a community-based approach to address street level public order, liveability and safety issues in neighbourhoods. There are many agencies, groups and organizations that represent a variety of neighbourhood issues. The purpose of this program is not to create a further community organization. Rather, this program will have a specific focus on co-ordinating the actions of existing groups to address street level issues. However, the development of action plans will involve consultation with all affected parties.
ii) The Co-ordinated Neighbourhood Response Team: The co-ordinated approach will involve a community-based, integrated team of those key agencies and organizations already involved in street level issues. Their efforts will be facilitated by a Project Co-ordinator funded by the City. With the assistance of the Project Co-ordinator, the community members will identify local issues and actions already underway, problem-solve, develop action and evaluation plans as well as contribute to a monitoring process. Links to relevant City, Provincial and Federal Ministry staff will be established by the Project Co-ordinator as required.
The Co-ordinated Neighbourhood Response Team would include:
· Representatives from key community, residents, business and service organizations directly involved in street level issues. Consultation with other community groups and the community at large will occur as required and specific task groups may be formed including other community groups as required.
· A Project Co-ordinator, a temporary two year position, will be hired by the City to manage the pilot project. Duties will be to ensure appropriate community representation, assist in the prioritization of issues, and assist in the development of the action plan and monitoring. The Co-ordinator will also lead the City staff team, access appropriate government staff and resources including liaison with current initiatives such as the Four Pillars strategy, VPD city-wide enforcement plan and the VCHA health treatment plan.
· City staff, including the West End NIST Team Chair, Deputy Chief License Inspector, the VPD District One Commander and a Drug Policy staff member. City staff team members will provide advice and response to specific issues, provide the larger context of government policy and service delivery, alert communities to opportunities for funding and services, as well as contribute to problem-solving. Other City staff will be involved as required, including Property Use Inspectors, Social Planning staff, Police, etc. Federal and Provincial staff liaisons are already linked to the Vancouver Agreement (VCHA, CAWS, MCF, HRDC, etc.) and would be engaged as required.
· A Project Steering Committee consisting of government/ community members to guide the project, including 3 community representatives from resident, business, and community-serving organizations, the General Manger of Community Services (or delegate), the Drug Policy Co-ordinator, the Deputy Chief License Inspector, the VPD District One Commander, the Community Project Manager and the Executive Co-ordinator of the Vancouver Agreement.
The role of the Steering Committee will be to facilitate, at a senior level, assistance to the communities, including linkages to other levels of government and specific staff service groups as required. The Steering Committee will ensure issues are approached in a balanced manner and the appropriate involvement of various interest groups.
4. Reporting Relationship
It is recommended that the pilot project be administered under the Vancouver Agreement. The reason for this is that the intergovernmental relationships that can assist with many of the root neighbourhood issues (e.g. addictions, homelessness, etc.) have already been established. There are also potential linkages to other VA Task Teams on related issues such as Housing, Drug Policy, Youth, etc. This project also will allow the VA, whose mandate goes beyond the DTES, to expand the role of the intergovernmental linkages into other areas of the city. The Project Co-ordinator would report through the Executive Director of the Vancouver Agreement to the Steering Committee.
This proposed outline may evolve as the project proceeds and adjustments will be made if necessary, and if required, as additional neighbourhoods are added.
FINANCIAL IMPLICATIONS
Total funding required for the pilot Co-ordinated Neighbourhood Response Program is $200,000.00 over two years. Funding for the Project Co-ordinator will amount to approximately $45,000.00 in 2004, and $81,000.00 in 2005. Approximately $3,600.00 in technology costs is also required. Residual funds ($70,400.00) will be used to help resource community meetings, information and communication needs. A more detailed budget will be prepared once the pilot project is convened and a draft plan developed. At that time, staff will be able to assess the process and decide how many neighbourhoods can be accommodated within this level of staffing and funding. Funding required in 2004 is $60,000.00, to be funded from the Contingency Reserve. The balance, $140,000.00, is to be funded in 2005 as an increase to the Operating Budget without offset. Funding for office space will be included in an upcoming report on additional space requirements for CSG and other staff.
CONCLUSION
Several neighbourhoods in the City are experiencing the negative effects of disruptive street level issues. Staff recommend that this pilot project proceed immediately with the hiring of the Project Co-ordinator and convening the initial meeting of the West End Co-ordinated Neighbourhood Response Team.
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Appendix A: Oct. 17, 2003 Council's Neighbourhood Liveability and Safety Resolution
Appendix B: Recommendations contained in Jan. 26, 2004 report re: Mayor's Forum on Neighbourhood Liveability and Safety in Vancouver
Appendix C: June 15, 2004 Draft Terms of Reference for the West End Neighbourhood Co-ordinating Community
APPENDIX A
Motion: City Council; October 7, 2003. Neighbourhood Liveability and Safety
"WHEREAS, aggressive panhandling, open drug markets, squatting on public land, theft from auto, shoplifting and break-and-enter are perceived by many citizens, tourists and businesses as a growing problem in Vancouver;
AND WHEREAS, Vancouver's social and economic health depends on its overall liveability, until now the top-ranked in the world;
AND WHEREAS, Vancouver City Council has demonstrated its concern for the homeless, victims of drug addiction and the safety of sex trade workers, including leadership on opening a safe injection site, investments in low-income housing, and a commitment by the Mayor for community forums on the safety of sex trade workers;
AND WHEREAS, average taxpaying citizens and businesses are feeling that their concerns about the safety and liveability of their neighbourhoods are not being heard;
AND WHEREAS, action to help victims of drug abuse, poverty, violence against sex trade workers and welfare changes has to be balanced with actions to maintain the safety of neighbourhoods and the economic viability of the city;
AND WHEREAS, at its meeting of September 16, 2003, City Council requested that these and other issues be taken to the Vancouver Caucus for discussion;
AND WHEREAS, this Council believes strongly in citizen input and should have it prior to the discussion at the Vancouver Caucus;
THEREFORE BE IT RESOLVED THAT City Council convene a Mayor's forum to receive input from citizens, neighbourhood groups and businesses regarding the impacts of aggressive panhandling, open drug markets, squatting on public land, theft from auto, shoplifting and break-and-enter, along with suggestions for actions the City can take to improve neighbourhood safety and liveability."
APPENDIX B
Draft recommendations based on initial stakeholder group consultations
(Recommendations from the Mayor's Forum on Neighbourhood Liveability and Safety in Vancouver, dated January 26, 2004)
I. Recommendations for Civic Action
Recommendation 1: That City Council ask the City Manager to report back on the cost and earliest possible implementation timelines for a pilot project, building on the City's Neighbourhood Integrated Service Team approach, to achieve improvements in neighbourhood liveability and safety that reflects the following elements:
_ An initial focus on one or two communities, possibly the West End/Downtown Peninsula and another neighbourhood on the east side, to develop a short list of priority actions to tackle street-level problems in a manner that reflects each neighbourhood's specific needs;
_ Direct community involvement in planning and implementation, through participation of business improvement associations, community organizations, service providers and other groups;
_ Increased criminal code and bylaw enforcement as required;
_ Integration of provincial service providers as required to enhance access to youth, criminal justice, mental health and housing services;
_ Improved police presence at the community level, including direct participation on the project team; and
_ A progress report to City Council within six months to evaluate the pilot project and assess the prospects for its extension to other neighbourhoods.
Recommendation 2: That City Council ask the City Manager, in consultation with the Chief of Police, to report on the cost and time required to restore the Vancouver Police Department to the number of sworn officers that was authorized at May 1, 2003, and then to raise the force to the national average of officers on a per capita basis, keeping in mind the time required to recruit and train new officers, and the need protect other City services while holding taxes as low as possible.
II. Recommendations for Provincial action
Recommendation 3: That the City of Vancouver restate its opposition to the province's proposed April 1 changes to Income Assistance, as set out in the Council resolution of November 6, 2003, and call on the Province both to eliminate the two-year eligibility limit for income assistance while raising income assistance for a single person to $675 a month from $500, including a shelter allowance of $375.
Recommendation 4: That the City of Vancouver call on the Provincial Government to increase resources available for mental health, youth and drug and alcohol treatment services as outlined in the Vancouver Coastal Health Authority's Operational Addictions Plan.
Recommendation 5: That the City of Vancouver urge the Solicitor General to convene a multisectoral meeting or summit of enforcement agencies, municipalities, Federal Government departments, the BC College of Pharmacists and the business community to consider both local measures to control precursors and co-operative ways of tackling the issue of crystal meth production at the local level.
Recommendation 6: That the City of Vancouver, in line with the council motion of Sept. 16, 2003, call on the Province of BC to restore the Homes BC program to allow the construction of desperately needed affordable housing in the city of Vancouver and surrounding municipalities.
Recommendation 7: That the City of Vancouver call on the Province of BC to deliver on the Premier's election commitment to return all traffic fine money to municipalities to provide the City with additional resources to improve neighbourhood liveability and safety.
III. Recommendations for Federal action
Recommendation 8: That the City of Vancouver call on the Federal Government to implement all possible measures to control the manufacturing, importation, distribution and possession of precursor substances required for the manufacture of crystal methamphetamine and ensure that an adequate level of inspection and enforcement resources are in place to monitor these measures.
Recommendation 9: That the City of Vancouver call on the Federal Government to work with the Province of BC and the City of Vancouver to ensure a significant increase in the stock of affordable housing, with particular emphasis on youth aged 16 to 19, young adults, people with dual diagnoses of addiction and mental illness, and aboriginal people.
Recommendation 10: That the City of Vancouver call on the Federal Government to support the City's Four Pillar Drug strategy through the Vancouver Agreement by funding increased Prevention, Treatment and Harm Reduction services for Vancouver through the National Drug Strategy.
Recommendation 11: That the City of Vancouver should commend Prime Minister Paul Martin for his proposal to share revenue with Canadian municipalities and urge him to implement this important change as quickly as possible.
APPENDIX C
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